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Archaeological Management Plan Comprehensively Models Archaeological Potential to Assist in Their Protection

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Archaeological Management Plan Comprehensively Models Archaeological Potential to Assist in Their Protection Planning for the Conservation of Archaeological Resources in York Region February 2014 Planning for the Conservation of Archaeological Resources in York Region 1 PLANNING FOR THE CONSERVATION OF ARCHAEOLOGICAL RESOURCES IN YORK REGION EXECUTIVE SUMMARY York Region has a long cultural history which began approximately 11,000 years ago. Archaeological sites, which are the physical remains of this lengthy settlement history, represent fragile and non-renewable cultural heritage resources that need to be protected. The York Region Archaeological Management Plan comprehensively models archaeological potential to assist in their protection. Provincial legislation including the Planning Act, the Ontario Heritage Act, as well as policy such as the Provincial Policy Statement 2005, requires municipalities to plan for the conservation of archaeological and heritage resources. There are several initiatives that support the development of municipal archaeological management plans. Specifically, the Ipperwash Inquiry Report recommends that every municipality in Ontario adopt a Management Plan for Archaeological Resources to predict where archaeological resources are most likely to be located and to establish a process for requiring appropriate archaeological assessment in those areas before development takes place. Municipalities can demonstrate leadership and address archaeological resource management through the preparation of an Archaeological Management Plan, which will: 1. Document and evaluate an inventory of known archaeological resources, 2. Identify areas of archaeological resource potential, where undiscovered archaeological resources are most likely to be, 3. Detail a process for proceeding with land development in areas of archaeological resource potential and identify circumstances when land development is not appropriate, or needs to be modified, and 4. Structure this process within a clear, logical framework. Archaeological Management Plans: • Reduce the risk of unforeseen discoveries during development (such as disturbing a burial site), • Increase public awareness of archaeological resources, • Warn property owners and prospective buyers that archaeological investigations will be required in order to develop or redevelop a site, • Give citizens greater insight into their community’s history and the opportunity to appreciate its heritage more fully, and • Allow for the identification and interpretation of greater numbers of cultural heritage resources, which may offer opportunities for increased tourism. The preparation of an Archaeological Management Plan is particularly important for York Region which will be growing to 1.5 million residents in 510,000 households, and 780,000 jobs, by 2031. Accommodation of this growth will require the expansion of the existing urban boundary in East Gwillimbury, Vaughan and Markham, redevelopment and intensification of existing built-up areas and construction or expansion of supporting infrastructure. In recognition of these facts, York Region retained Archaeological Services Inc. (ASI) to prepare the Archaeological Management Plan. The York Region Archaeological Management Plan has five major goals: 1. The compilation of detailed, reliable inventories of registered and unregistered archaeological sites within the Region, 2. The development of an archaeological site potential model and associated mapping, based on known site locations, past and present land uses, environmental and cultural-historical data, and assessment of the likelihood for survival of archaeological resources in various urban contexts, 3. Recommendations concerning revisions to Regional and Local Official Plan policies concerning archaeological resources, and the integration of archaeological assessment into the development application process, 4. Recommendations regarding the development of a First Nations and Métis Consultation Tool, and, 5. Recommendations regarding the development of a Contingency Plan for the Protection of Archaeological Resources in Urgent Situations. In ensuring the compilation of detailed, reliable inventories of registered and unregistered archaeological sites within the Region, it was essential to consult with First Nations and the Métis Nation of Ontario to ensure that our analysis accurately reflects First Nations cultural ties, traditional territories and historic knowledge of York Region. To facilitate this dialogue, York Region established the Archaeological Management Plan Steering Committee which included a broad range of stakeholders, including: • First Nations o Alderville First Nation o Beausoleil First Nation o Chippewas of Georgina Island First Nation o Curve Lake First Nation o Hiawatha First Nation o Huron-Wendat First Nation o Kawartha-Nishnawbe First Nation of Burleigh Falls ii o Mississaugas of the New Credit First Nation o Mississaugas of Scugog Island First Nation o Rama First Nation o Six Nations of the Grand River • The Métis Nation of Ontario • Regional staff • All local municipalities including both planning and municipal heritage staff • Toronto and Region Conservation Authority • Lake Simcoe Region Conservation Authority • Building Industry and Land Development Association (BILD) Seven Steering Committee meetings have been held to review the products that developed as part of the Archaeological Management Plan. In addition, the Region consulted and met with First Nations and Métis representatives separately, when they were not able to attend Steering Committee meetings. Results of the Study As of spring 2012, 1,453 archaeological sites had been registered within the Region, which date from the earliest period of human occupation in the Region and surrounding areas, 11,000 years ago, through to the nineteenth and early twentieth centuries. In order to understand the manner in which undiscovered archaeological sites may be distributed within the Region, an archaeological potential model was developed using the Region’s Geographic Information System (GIS) to map various sets of information as separate, but complementary layers of spatial data on 1:10,000 scale digital base maps. The areas of pre-contact archaeological potential were determined only after a detailed consideration of the past natural and cultural environments in the Region. Important considerations in determining pre-contact archaeological potential include distance to various forms of potable water, soil drainage characteristics and slope attributes. Examination of the early historic mapping of the Region, together with identification of areas of early European settlement (i.e., residential, commercial, industrial and transportation development) helped to determine the areas of historic archaeological potential. After eliminating areas where previous land development has resulted in extensive landscape disturbance, the remaining lands falling within the areas of pre-contact and historic potential encompass approximately 55% of the total landmass of the Region. A significant percentage of these areas are already protected from development by virtue of their location within the Regional Greenlands System. Maps 1, and 1 a), b) and c) of the Plan show the locations of Archaeological Potential in the Region as a whole and in the three urban expansion areas. Map 2 indicates Areas iii of Ossuary Potential in the Region, where an ossuary or communal burial may be located. Only a very small portion of ROPA 2 has lands subject to the Ossuary Potential Model at this time. Should additional Villages be found in areas of Archaeological Potential then the Ossuary Potential model would be applied. The primary means by which archaeological resources may be protected is through the planning approvals process, since municipally-approved developments constitute the majority of land-disturbance activities in the Province. In recognition of these facts, the Archaeological Management Plan recommends a number of policies for incorporation into the York Region Official Plan, and practices for implementation in the development approvals process for the Region. The local municipalities will ensure the conservation of these valuable cultural heritage resources within the context of growth in the Region. The major recommendations resulting from this study include: 1. Amend the Regional Official Plan to expand the existing section specific to archaeological planning and adopt new policies (See Appendix A). It is recommended that a definition of archaeological resources that is both consistent with the definition laid out in the Provincial Policy Statement, and recognizes their fragile nature, be included. 2. Make Archaeological Potential and Ossuary Potential mapping available to the local municipalities, the development industry and the public by means of YorkMaps, to be used in determining requirements for archaeological assessments in advance of submission of development applications. 3. Assist local municipalities in developing and implementing archaeological procedures as part of the development application review process, to ensure a consistent approach. 4. Undertake to update the Archaeological Management plan and Potential mapping, as outlined in Section 10. 5. Develop, in collaboration with First Nations, Métis, the Ministry of Tourism, Culture and Sport, and local municipalities, a First Nations and Métis Consultation Tool for York Region (see Section 6). 6. Develop, in collaboration with local municipalities, a “Contingency Plan for the Protection of Archaeological Resources in Urgent Situations” for instances when
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